4 Introduction Foreword Traditionally, disaster recovery activities have preceded mitigation activities, both considered two distinct phases of the disaster cycle (the other two being preparedness and response). With the passage of the federal Disaster Mitigation Act of 2000, funding has become available for mitigation planning and projects prior to a disaster, thereby providing local government a means to lessen the impacts of future disasters. The State Office of Emergency Services (State OES) strives to minimize the impacts of future disasters as much as possible and to ensure a smooth recovery should a disaster occur. Purpose This handbook provides local governments information regarding many state and federal recovery programs, as well as the federal mitigation opportunities and requirements. Included with this handbook are two recovery and mitigation planning checklists, local/state/federal emergency proclamation/declaration requirements, tables describing program requirements, and how to access the disaster recovery and mitigation programs available. Role of State OES State OES is responsible for the coordination and administration of statewide emergency preparedness, response, recovery and mitigation activities for all hazards including terrorist incidents. OES has developed and implemented the Standardized Emergency Management System (SEMS) as a uniform system for managing response activities throughout the state. Utilizing SEMS, local governments initially request assistance through their Operational Area (OA) to the State OES Regional Emergency Operations Centers (see map on following page). Disaster recovery and mitigation activities are coordinated through the Disaster Assistance Division (DAD) of State OES. DAD Overview DAD maximizes disaster recovery and mitigation assistance to provide a safer future for all California communities by: coordinating and administering state and federal disaster assistance programs for local and state government; implementing a comprehensive grant management system; coordinating recovery assistance for individuals, small businesses and the agricultural community; coordinating hazard mitigation activities throughout the state; promoting disaster recovery and mitigation planning; providing disaster recovery and mitigation educational activities; and providing technical assistance. Continued on next page Disaster Recovery and Mitigation Handbook 1

5 Introduction, Continued Regional Map At the onset of an event, local government should initially coordinate with the State OES State OES Regional Emergency Operations Centers (REOCs) through their Operational Area (OA). The map below illustrates California s geographical boundaries of the six State Mutual Aid Regions and three OES Administrative Regions Schriever Avenue Mather, CA (916) Clay Street, Suite 400 Oakland, CA (510) Liberty Avenue Los Alamitos, CA (562) Disaster Recovery and Mitigation Handbook 2

6 Before Disaster Strikes Recovery: Returning to Predisaster Conditions Introduction In the California State Emergency Plan, Disaster Recovery is both short-term activities intended to return vital life-support systems to operation, and long-term activities designed to return infrastructure systems to predisaster conditions. Returning vital life support and infrastructure systems is more manageable, however when local government addresses recovery issues in its planning activities. In addition to this handbook, DAD staff is available to assist local governments with the recovery planning components that will simplify disaster recovery efforts of an impacted community. DAD Informational Assistance To assist with Recovery Planning and information, DAD provides ongoing educational programs and other informational forums for local and state government, special districts, and private non-profit organizations (PNPs) including: Disaster Resistant California (annual spring conference): Promotes public/private partnerships Provides a forum for the exchange of risk assessment and risk reduction information; Mitigation Education and Marketing (audio/visual display): Promotes prevention and hazard mitigation Assists with hazard recognition Emphasizes effective mitigation planning; Public Assistance Subgrantee Training Program: Provides detailed information on state and federal recovery programs Provides updates to laws, regulations, policies, practices, etc.; SEMS Recovery Committee: Provides updates on the state recovery strategies Provides information on emergency management of potential terrorist events Promotes the resolutions to disaster recovery issues Develops and distributes informational tools to promote disaster recovery preparedness. Continued on next page Disaster Recovery and Mitigation Handbook 3

7 (Recovery: Returning to Predisaster Conditions, Continued Documentation Information acquired and created during response activities forms the basis for recovery documentation. As such, local government should incorporate disaster documentation into the current financial tracking system. To obtain maximum reimbursement for disaster-related expenditures, it is critical that local government: implement their disaster documentation system during a disaster; ensure disaster-related expenditures are easily distinguished from on-going activities; and maintain accurate accounting records including: force account la bor (timesheets) and equipment; invoices for rented equipment, materials and purchases; photographs of damage and repair; insurance information; environmental and historical preservation issues; and records of donated goods and services. keep these records for three years after the last action on the disaster application (OES will notify you when the three year-time frame begins) Disaster Recovery and Mitigation Handbook 4

9 Hazard Mitigation: Improving Conditions to Prevent Loss Introduction Hazard Mitigation (HM) is any cost-effective activity that seeks to eliminate or reduce human suffering and property damage from natural and manmade hazards. In order to lessen future disaster recovery costs, the Hazard Mitigation Program assists state and local agencies, private-nonprofit organizations, and Indian tribes in planning for and implementing hazard mitigation projects. Hazard Mitigation Planning Hazard Mitigation Planning includes analyses of ways to eliminate or reduce the impact of future disasters. The federal Disaster Mitigation Act of 2000 requires the state to develop and maintain a State Hazard Mitigation Plan. California s hazard mitigation planning process is continuous and involves a multitude of federal, state, and local agencies, academia, private non-profit organizations, and community-based organizations. A local plan, approved by FEMA, is also required to receive grant funds for mitigation projects from the federal Hazard Mitigation Grant Program and the federal Pre-Disaster Mitigation Grant Program. The requirements for the Pre- Disaster Mitigation Grant Program funding (page 8) were effective November 1, For the post-disaster HMGP (page 23), the effective date is November 1, Plans must be submitted to the State Hazard Mitigation Officer of State OES for initial review and coordination. The state will then send the plan to the appropriate FEMA Regional Office for formal review and approval. Mitigation Plan Requirements The local plan shall: Document the process used to develop the plan, including how it was prepared, who participated in the process, and how the public was involved. Describe of the type, location, and extent of all natural hazards that can affect the jurisdiction. The plan shall include information on previous occurrences of hazard events and the probability of future hazard events. Include a risk assessment that provides the factual basis for activities proposed in the strategy to reduce losses from identified hazards. Risk assessments must provide sufficient information to enable the jurisdiction to identify and prioritize appropriate mitigation actions to reduce losses. Please see the following table for examples of local mitigation planning elements. Continued on next page Disaster Recovery and Mitigation Handbook 6

10 Mitigation Planning Checklist The following information highlights the federally required criteria for local mitigation planning. The information should be incorporated into local mitigation planning activities. Conduct a risk assessment describing: Past hazard events Hazard threats (e.g., earthquakes, floods, fires, chemical releases) Hazard areas (provide maps) Type and numbers of structures at risk Repetitive loss areas (provide maps) Potential impacts to community Potential losses for each hazard type Information regarding local building code effectiveness. Develop a mitigation strategy describing: Local mitigation goals and objectives Cost-effective mitigation projects Activities implemented to comply with the National Flood Insurance Program (NFIP) Community s commitment to mitigation activities Community development trends Any interagency agreements necessary for plan implementation Local plan implementation. Develop a plan maintenance process including: Method and schedule of updating Method of incorporating public participation into the planning process Formal plan adoption process Description of how small and impoverished communities funds will be used, if appropriate. Disaster Recovery and Mitigation Handbook 7

11 Funding for Pre-Disaster Mitigation Overview The federal Pre-Disaster Mitigation Grant Program (PDM) provides funds for hazard identification, mitigation strategies, and public partnerships. More specifically, PDM: Supports development of the hazard mitigation planning process at the state and local levels and funds high priority projects from these plans. Provides a continuous flow of funding to states for hazard mitigation, whether the state has experienced a recent disaster or not. Supports local communities in becoming disaster resistant by providing technical and financial assistance to state and local governments in implementing costeffective pre-disaster hazard mitigation measures. Helps to reduce injuries, loss of life, and damage and destruction of property, including damage to critical services and facilities under the jurisdiction of state or local governments. Authority and Administration The PDM is authorized under the Stafford Act, Section 203, amended by Section 102 of the Disaster Mitigation Act of FEMA will administer this new program through OES. Applicant Eligibility Communities that wish to participate in this program must demonstrate commitment to the implementation of hazard mitigation activities within their jurisdiction. Planning and Project Grants Planning grants assist the state and its communities in developing a multi-hazard mitigation plan. Planning grants may also be used for technical assistance including risk assessments, project development, community outreach and education. (Funds applied to planning grants cannot exceed 10 percent of the state s allocation) Project grants will be awarded in accordance with the priorities cited in the State Hazard Mitigation Plan. Project grants may be used to reimburse costs for acquisitions or relocations of vulnerable properties, structural retrofits, vegetation management (e.g., shaded fuel breaks, defensible space), public information and educational programs. Disaster Recovery and Mitigation Handbook 8

12 Funding for Flood Mitigation Overview Flood Mitigation Assistance (FMA) provides funding for measures to reduce or eliminate the long-term risk of flood damage to repetitive loss of buildings, manufactured homes, and other structures insurable under the FEMA National Flood Insurance Program (NFIP). Authority and Administration The FMA is authorized under 44CFR Part 78, Flood Mitigation Assistance. FEMA grants FMA funding to OES annually. OES has administered the FMA program in California since Applicant Eligibility Communities requesting FMA planning and project grants must be participating in the NFIP. There are three types of FMA grants: Planning, Project and Technical Assistance. Planning and Project Grants Planning grants are available for the flood portion of any mitigation plan. The performance period for each planning grant will not exceed 3 years. The total planning grant made in any fiscal year to any state, including all communities located in the state, will not exceed $300,000. FMA Project Grants are available to NFIP-participating communities to implement measures to reduce flood losses. Example FMA projects are elevating structures, acquisitions, watershed management (e.g., detention basins, increased culvert size) FEMA contributes up to 75 percent of total eligible costs for each grant. At least 25 percent of the total eligible cost will be provided from a non-federal source. The state will evaluate and approve applications for FMA planning grants. The Regional Director will allocate available funds for FMA each fiscal year. FMA Technical Assistance Grant A percent of the project grant is made available to the state as a technical assistance grant to administer the project grants. Disaster Recovery and Mitigation Handbook 9

13 When Disaster Strikes Introduction When disaster strikes a community, those affected may be irrevocably changed by the event. Local officials, already stressed and overwhelmed by response activities, must make significant decisions to return the community to predisaster conditions. Historically, disaster recovery takes longer and costs more than originally anticipated. How well the community has planned and prepared for such an event, profoundly impacts its ability to recover effectively. Safety Assessments Immediately following a disaster, it is imperative that the safety of public and private structures be determined. The Safety Assessment Program (SAP) provides professional evaluators (volunteers) and mutual aid resources to local governments, to determine use and occupancy of homes, buildings and infrastructure. Evaluators may be deputized by the local building official to post placards (green, yellow or red) on facilities. SAP evaluators are typically registered engineers, licensed architects or certified building officials or inspectors. All volunteer evaluators are designated as Disaster Service Works and are covered under California s worker s compensation and liability protection laws. If your agency requires additional building inspectors to perform safety assessments, you may request these resources through the Operational Area. For additional SAP information you may: access the OES Web site; or contact the Statewide Coordinator at (916) Continued on next page Disaster Recovery and Mitigation Handbook 10

14 Emergency Proclamations/Declarations If the local government requires state or federal assistance, it is important to know if a local proclamation of an emergency is a prerequisite to obtaining the assistance. The chart below provides an overview of the programs discussed in this handbook and indicates proclamation/declaration requirements. Please Note: If a local emergency proclamation is required, it must be issued within 10 days of the event. Program Name SAP FMAG State PA under an OES Director s Concurrence State PA under a Governor s proclamation of state of emergency Federal PA (major disaster declaration) Federal PA (emergency declaration) Individuals and Household Program (IHP) State Supplemental Grant Program (SSGP) SBA Economic Injury Disaster Loan Program SBA Physical Disaster Loan Program USDA Disaster Designation Crisis Counseling Programs Disaster Unemployment Assistance Type of Assistance Provides professional evaluators to determine safety, use and occupancy of homes and buildings Reimbursement of emergency response costs for fire suppression Funding to restore public infrastructure Reimbursement of local emergency response costs, debris removal and funding to restore public infrastructure Reimbursement of local emergency response costs, debris removal and funding to restore public and allowable private-non-profit infrastructure Reimbursement of local emergency response costs Grants for unmet recovery needs to individuals and families Supplemental grants for individuals for recovery may be available only when maximum IHP has been reached Working capital loans for small businesses that have suffered an economic loss Loans for individuals, families and businesses that have lost real and personal property Loans for farmers and ranchers for physical and crop production losses Referral/resource services and shortterm counseling for emotional and mental health problems caused by the disaster Weekly unemployment benefits and job finding services due to a disaster Local Proclamation Required? State of Emergency Required? Federal Declaration or Designation Required? No No No No No Yes Yes No No Yes Yes No Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes No No Yes No No Yes No No Yes Yes Yes Yes Yes Yes Yes Disaster Recovery and Mitigation Handbook 11

15 Damage Assessments When requesting state or federal disaster assistance, local government must provide information to support the request. The chart below describes the mechanisms required to document damages and determine needed assistance in the impacted area. Report Title Initial Damage Estimate (IDE 1 ) Preliminary Damage Assessment (PDA) Damage Assessment by other Federal Agencies Responsible Party Local jurisdiction DAD field staff assisted by OES Regional staff, local, state and/or federal government staff Small Business Administration (SBA) U.S. Dept. of Agriculture (USDA) and/or local Agricultural Commissioner Description Needed Initial description of damage including: type and extent of public and private sector damage basic repair and emergency response costs any acute public health issues number of homes and businesses not insured or underinsured Preliminary detailed damage report including: facility types (e.g., school, road, private residences) and location facility insurance and/or maintenance records damage description and repair estimates local government budget reports destroyed/damaged residences, personal property, businesses any identified environmental or historical issues Includes the number of private homes and businesses damaged or destroyed and estimated uninsured losses. It also may include documentation showing economic injury to businesses Includes cause, type and value of crop/livestock losses. Purpose of Report Provides information for State OES to determine if state and/or federal disaster assistance is warranted and to what external resources are needed. An IDE should be provided concurrently with request for assistance. Not providing this information promptly can delay assistance. Provides information for State OES to determine extent and type of state and/or federal disaster assistance. This information is also used by FEMA to prepare a regional analysis of the request for consideration by FEMA headquarters. Ensures minimum damage criteria have been satisfied to implement the Physical or Economic Injury Disaster Loan Program Provides USDA with justification to implement emergency loan program. 1 IDE: This report is available via the online Response Information Management System (RIMS) located on the State OES Web site at: Disaster Recovery and Mitigation Handbook 12

16 Local Assistance Centers/Disaster Recovery Centers LACs Local government may consider activating Local Assistance Centers (LACs) to provide a centralized location for services and resource referrals for the unmet needs of disaster victims. State funding may be available for eligible LAC operations. Historically, LACs have proven to be a key factor for a successful recovery. LAC characteristics generally include: resource facility for recovery information, services and programs; community-based service facilities; managed by local government; and staffed by PNPs, local, state and federal government, as appropriate. For additional information, contact State OES for A Guide for Establishing a Local Assistance Center. Disaster Recovery Centers (DRCs) DRCs may also be activated by key federal agencies to provide convenient locations for victims and private non-profit organizations to obtain information about FEMA and SBA programs. DRC characteristics generally include: fixed or mobile resource facility for FEMA and SBA recovery information managed by federal government; and staffed by FEMA, OES, SBA and other federal, state and local agencies as appropriate. Continued on next page Disaster Recovery and Mitigation Handbook 13

17 Disaster Assistance Programs and their Requirements The following tables are designed to provide local emergency managers a quick reference to disaster assistance programs administered or coordinated by DAD. The tables are grouped by potential recipients and indicate general program implementation criteria, including key deadlines. Continued on next page Disaster Recovery and Mitigation Handbook 14

18 Public Assistance through OES Public agencies include state agencies and departments, cities, counties, city and county, school districts, community college districts, special districts and certain private non-profit agencies. The following table describes implementation criteria for the five main public assistance disaster programs administered by OES: Director s Concurrence, Governor s Proclamation of a State of Emergency, Fire Management Assistance Program (FMAG), Presidential Declaration of an Emergency, and Presidential Declaration of a Major Disaster. Type of Assistance Program Name and Authority Cost Share Requirements Implementation Criteria Funding to restore damaged public infrastructure (e.g. roads, buildings, utilities) Reimbursement of local emergency response costs, debris removal, and funding to restore damaged public infrastructure Reimbursement for fire suppression costs Reimbursement of local emergency response and debris removal costs Funding to restore public infrastructure* and reimbursement of emergency response and debris removal costs Funding to provide crisis counseling services State Public Assistance CDAA -- Director s Concurrence with local emergency State Public Assistance CDAA Governor s Proclamation of a State of Emergency FMAG Stafford Act Federal and State Public Assistance Stafford Act and CDAA -- Presidential Declaration of an Emergency Federal and State Public Assistance Stafford Act and CDAA -- Presidential Declaration of a Major Disaster FEMA Crisis Counseling Program Stafford Act 75% State 25% Local 75% State 25% Local 75% Federal 25% Local 75% Federal 18.75% State 6.25% Local 75% Federal 18.75% State 6.25% Local 75% Federal 25% State Local agency must proclaim an emergency and request a Director s Concurrence within 10 days of an event. A Governor s proclamation of a state of emergency is not required for the OES Director to provide CDAA funding to repair damaged public facilities. Local agency must proclaim an emergency and request the Governor to proclaim a state of emergency within 10 days of an event. The request should include dates of the event, an IDE, areas affected, and appropriate type of assistance needed. Responsible fire agency must request FMAG assistance while the fire is still burning out of control. Neither local nor state emergency proclamations are necessary for the implementation of this program. Local agency must proclaim an emergency and request the Governor to proclaim a state of emergency within 10 days of an event. The Governor has 5 days to request federal assistance. Local government should provide detailed information including dates of the event, an IDE, areas affected, appropriate type of assistance needed. Local agency must proclaim an emergency and request the Governor to proclaim a state of emergency within 10 days of an event. The Governor has 30 days to request federal assistance. Local government should provide detailed information including dates of the event, an IDE, areas affected, and appropriate type of assistance needed. *Funding beyond what is necessary to restore a facility may also be approved for hazard mitigation measures to ensure that future similar damage will not occur. These mitigation projects include cost-effective improvements to the current design and capacity of the existing facility. This program is funded by FEMA and administered through the state Department of Mental Health. Benefits may be short term or long-term (up to 9 months). Disaster Recovery and Mitigation Handbook 15

19 Public Assistance Through Other Agencies The following table describes the implementation criteria for disaster assistance programs available to public entities through federal agencies other than FEMA. Through CDAA, the state may also cost share with these federal programs. Type of Assistance Program Name/Lead Federal Agency and Authority Watershed restoration Emergency Watershed Program / NRCS Division of the U.S. Department of Agriculture Emergency flood and post-flood activities Restoration of publicly sponsored flood control structures Emergency repairs to federal roads and highways Permanent restoration of damaged federal aid highways Long-term economic redevelopment Section 216, P.L and Sections , P.L USACE Emergency Operations / USACE Flood Control and Coastal Emergencies Act (P.L ) USACE Rehabilitation Program/USACE Flood Control and Coastal Emergencies Act (P.L ) FHWA Emergency Relief (ER) Program/FHWA Title 23, U.S.C., Section 125 FHWA ER Program / FHWA Title 23, U.S.C., Section 125 HUD Disaster Recovery Initiative/ HUD Section 122 of the Housing and Community Act of 1974, as amended Cost Share Requirements 75% NRCS 18.75% State 6.25% Local 100% USACE 100% USACE 100% FHWA if performed within 180 days of an event % FHWA 8.6% State 2.87% Local 75% Federal 18.75% State 6.25 % Local Implementation Criteria Eligible activities include providing financial and technical assistance to remove debris from streams, protect destabilized streambanks, establish cover on critically eroding lands, repair conservation practices, and the purchase of flood plain easements. This program does not require a Presidential disaster declaration before it is implemented. However, in order for the sponsoring agency to be eligible for state cost share, the Governor must have proclaimed a state of emergency for the event. For additional information refer to: The USACE may provide manpower, supplies, and equipment for flood-fighting, debris clearance and temporary levee repairs during the emergency period and up to a maximum of 10 days thereafter. This program does not require a Presidential disaster declaration before it is implemented. For additional information refer to: The USACE Rehabilitation program provides assistance for permanent repairs to federal system levees. Although USACE covers the repair costs, the local sponsoring agency may be required to purchase additional soil and must sign Hold Harmless agreements and other applicable assurances before work can begin. This program does not require a Presidential disaster declaration before it is implemented. For additional information refer to: This program may be implemented upon a Presidential Declaration or by special request from the Governor when a state of emergency has been proclaimed. The FHWA ER program is administered through Caltrans. For additional information refer to: FHWA funds percent of repairs upon a Presidential Declaration or by special request from the Governor when a state of emergency has been proclaimed. The FHWA program is administered through Caltrans in close coordination with OES. For additional information refer to: Funds earmarked for certain HUD projects may be transferred to emergency projects if not covered by FEMA and are in the best interest of the post-dis aster stricken community. California Department of Housing and Community Development administers this program. For additional information refer to: Disaster Recovery and Mitigation Handbook 16

20 Individual and Family Assistance The following table describes the implementation criteria for programs that are available to assist businesses, families and individuals, and Private non-profit (PNPs) agencies in recovering from a disaster. Type of Assistance Low interest loans for losses to real property (primary residences) which may include mitigation measures Low interest loans for losses to personal property Grants to cover temporary housing needs, home repairs, losses to personal property, transportation expenses, funeral and medical expenses, etc. Grants to individuals and families that have received the maximum IHP grant but still have unmet needs Disaster Unemployment Assistance Program Name and Authority SBA Physical Disaster Loan Program 13 CFR Ch. 1 Part 123 SBA Physical Disaster Loan Program 13 CFR Ch. 1 Part 123 Individual and Households Program (IHP) Robert T. Stafford Act Disaster Relief and Assistance Act, 44 CFR Ch. 1, Part 206, Subpart D, Sect State Supplemental Grant Program California Department of Social Services W/I DUA U.S. Department of Labor, 20 CFR, Part CFR, part Loan/Grant General Implementation Criteria Maximum* The SBA Physical loan program may be implemented upon a Presidential declaration of an emergency or major disaster. Victims are required to first seek loan assistance through SBA before they can be considered for a federal grant through FEMA. SBA also has the authority $200,000 to independently (without a Presidential declaration) implement the program when at least 25 homes and/or businesses suffer 40% uninsured losses of their estimated fair market or predisaster fair market value, whichever is lower. In this case, a request for SBA declaration must be requested through OES within 60 days of the occurrence. $40,000 Same as above. $25,600 This is a federal grant program managed and administered by FEMA upon a Presidential Declaration of an Emergency or Major Disaster. Victims who are found to be ineligible for an SBA loan are referred to FEMA s IHP program. $10,000 This program is administered through the state Department of Social Services. It is only implemented when FEMA has activated the IHP. The state has no authority to activate the SSGP independent of a federal declaration. N/A This program may be implemented by the Department of Labor upon a Presidential declaration. It allows those unemployed due to a disaster up to 26 weeks of unemployment benefits. *Please note that these amounts were current as of March 1, They are adjusted annually based on the consumer price index. Disaster Recovery and Mitigation Handbook 17

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